implementation of e-government in cross-border regions · 2020-02-13 · ioduction 5 1.3 key...

Handbook

Implementation of

E-Government in

Cross-Border Regions

2015

This document has been produced with the financial assistance of the Estonia – Latvia –

Russia Cross Border Cooperation Programme within European Neighbourhood and

Partnership Instrument 2007 – 2013. The contents of this document are the sole

responsibility of the e-Governance Academy and can under no circumstances be

regarded as reflecting the position of the Programme, Programme participating

countries, alongside with the European Union.

1Implementation of E-Government in Cross-border Regions

TablE of ConTEnTs

1. InTRodUCTIon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

1.1 Aim and outline of Handbook . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

1.2 e-Government Concept . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

1.3 Key objectives and benefits of local e-government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

2. E-sERVICEs foR CITIZEns and bUsInEssEs . . . . . . . . . . . . . . . . . . . . . . . . . 8

2.1 Stages of online service development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

2.2 Interoperability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

2.3 Citizen inclusion and e-participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

2.4 Privacy and security matters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

3. dElIVERInG E-GoVERnMEnT In CRoss boRdER REGIons 12

3.1 Boosting online cross border services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12

3.2 Key barriers of cross border services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

3.3 Systems for authentication and authorization of citizens . . . . . . . . . . . . . . . . . . . . . . . . . . 13

3.3.1 Overview of the Estonian ID-card technology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14

3.3.2 Overview of the Russian Crypto Pro technology . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

3.3.3 Overview of the Latvian ID-card technology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

3.3.4 Overview of the technology „Welcome without

password – WWP”. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

3.4 Implementation of digital archiving in cross border areas –

Practical example from the EstLatRus project . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18

3.4.1 Introduction of electronic records and digital archiving . . . . . . . . . . . . . . . 18

3.4.2 Background of the management of cross border records . . . . . . . . . . . . . 19

3.4.3 Process analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

3.4.4 Lessons learned and conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

3Introduction

InTRodUCTIon

Information and communication technologies (ICTs), related telecommunication

and other digital networks are considered to be a major driving force in building

economies. These are increasingly recognized as a factor in improving existing

governance practices, where up to 80% of citizen-to-government (C2G) transactions

take place at the local level.

Local e-government means exploiting the power of ICTs for providing quality pub-

lic service and to help renew the relationship between citizens and the public bod-

ies who work on their benefit. At the local level e-governance and the appropriate

use of ICT can enhance and support economic and social development, particularly

in empowering officials and local authority representatives to ensure linkages, net-

working, and efficient, transparent, timely services.

Great benefits can be achieved by using ICT to enable digital public services (e-

services) across borders. However, many public online services do not work across

borders or involve cumbersome procedures to be accessible, reducing the mobility

of businesses and citizens. Therefore it is very important to analyze the possibilities

to develop and implement the quality services that decrease cross-border disparities

and provide more balanced development.

The purpose of this Handbook ”Implementation of E-Government in Cross-Bor-

der Regions” is to help local decision-makers to make informed policy choices and

understand the practical challenges and opportunities that introducing e-govern-

ment solutions imply in cross-border region. The Handbook provides good practices

and recommendations in order guide local authorities to implement cross-border

e-government solutions.

The Handbook was developed under the project “Increasing capacity of local au-

thorities in providing e-services in Ida-Virumaa-Leningrad oblast cross-border ar-

eas”. Overall objective of the project is to increase the administrative capacity and

e-readiness of local and regional authorities in providing socially significant public

1

4 Implementation of E-Government in Cross-border Regions

1.1 aIM and oUTlInE of Handbook

There are no ready-made good or bad local e-governance models or strategies. A

good model will be the one, which enjoys consensus among all stakeholders and

has evolved from a transparent and consultative process. Nonetheless, there are

some important benchmarking milestones that underpin the evolution of various

e-government initiatives into e-governance as a comprehensive public service and

government-to-citizen (G2C) communication system.

The Handbook gives a short overview of the three Est-Lat-Rus Programme Area

countries´ experiences in digital world, identifies key challenges and impacts, and

sets down possible strategies and guidelines for implementing cross-border e-gov-

ernment solutions, including digital archiving process.

1.2 E-GoVERnMEnT ConCEpT

e-Government is about transforming the way government interacts. e-Government,

in addition to service delivery, has also been used to enhance the coverage, increase

transparency, improve response to citizens and lower administrative costs. It also

facilitates citizens to have better access to services, equity and social empowerment.

The e-Government process requires a coherent strategy, beginning with an exami-

nation of the nation’s political will, resources, regulatory environment, and ability of

the population to make use of planned technologies.

e-services through cooperation and implementation of e-government solutions in

cross-border region.

The project is supported by the ENPI Cross Border Cooperation Programme that is

partly financed by European Union.

5Introduction

1.3 kEy objECTIVEs and bEnEfITs of loCal E-GoVERnMEnT

Information Society development is in large extent issue of local governments (LG-

s). As LG-s, compared to the central government, are more close to the citizens,

e-government implementation on the local level and in cross-border regions can

achieve the following objectives:

» More ‘joined up’ - common services in different organizations in the region, pro-

vided through linked information systems, improved access points and delivery

methods. This includes delivering services jointly with central and local gov-

ernment agencies and departments.

» More accessible - from home, libraries, offices – from anywhere for the better

convenience of the public rather than from LG offices in long queues. Equal ac-

Source: United Nations e-Government Survey 2008 - From e-Government to Connected Governance

CITIZEn GoVERnMEnT CITIZEn

nEEds

» Access to

information

» Online forms

and permits

» Work and

business

opportunities

CHallEnGEs

» Shared services

» Integrated Office

Operations

» Customer

Relationship

Management (CRM)

» Trust of Customer

» Data Security,

Verification and

Validation

» Infrastructure

nEEds

» Participatory

Process

» Citizen Friendly

Portal

» 24/7 Accessibility

» Ease of use

» One – Stop Shop

» Confidentiality

fIGURE 1: e-Government Model


cess for all and social inclusiveness are the key words. Services will be available

for the citizens at any time – not constrained by normal office hours or specific

technology to access the service (access channels).

» Delivered or supported electronically – creating more responsive, better val-

ued and faster services, also offering 24/7 access to information. For example

- simplifying access to services through web sites, such as changing school, set-

ting up a business, or changing home address. Seamless delivery and the re-

moval of unnecessary bureaucracy are the key aims.

» Open and accountable - providing more information about future activities,

priorities and performance, encouraging public consultation and supporting

local authority employees in keeping in touch with the people they represent.

» Used by ‘e-citizens’ – we need to support and encourage members of the public

to adopt e-services where appropriate, especially if it reduces transaction costs

and allows us to focus scarce resources on those in our communities who need it

the most. Though it is hard to know what the public will expect from electronic

public services in the future, and we recognize that not everyone will want or be

able to access services electronically, careful design and continuing consultation

will help avoid costly investment mistakes.

There are several benefits that implementation of the e-government provide:

» The use of ICT helps to improve efficiency in the government. ICTs are nec-

essary enabler of reforms to the ways in which public administrations work.

Improving internal operating systems like financial systems, internal communi-

cations and information sharing improve the efficiency of service provision in

general.

» Enhanced quality of service has been a major component of public administra-

tion reform over the past two decades, and the use of ICTs to generate improve-

ments in services has been a primary driver for e-government activity. Online ser-

vices are increasingly seen as part of a broader services strategy, with important

key-words like “customer focused” and “effective” (fast, simple and cost-effective).

» ICTs can support more effective outcomes in key policy areas such as health,

welfare services, security and education. Ultimately, governments and public ad-

ministrations exist to deliver policy outcomes, and ICT is just an enabler across

all major policy areas.

7Introduction

» e-Government can help forward the reform agenda. When aligned with mod-

ernization goals, implementing e-government can help administrations focus

on the additional changes needed to meet service delivery and good govern-

ance concerns. At the same time, it provides some valuable reform tools and

builds support from high-level leaders and government employees for achieving

those objectives.

» Through citizen engagement e-government can improve the overall trust re-

lationship between the government and the public. e-Government, by improv-

ing information flows together with encouraging active participation by citizens

is increasingly seen as a valuable tool and is also called as e-governance (e-gov-

ernment + e-participation/e-democracy).


E-sERVICEs foR CITIZEns and bUsInEssEs

LA-s have can increase citizens´ satisfaction on reaching for public services (e-

services), as people appreciate the convenience of being able to book ser-

vices, report faults or pay bills in the evenings and on weekends, through the

internet (online).

Coordination and cooperation between the border area LA-s are needed to satisfy

the following requirements of e-Government services:

» People are aware of available cross-border e-services and know how to use them

» e-Services are found easily from LA-s web-site, or from one access point in a sep-

arate web-site (one-stop-shop for e-services, etc) and are user-friendly

» e-Services must be accessible to all members of the intended target groups, in-

cluding people with special needs and elderly persons

» e-Services should add value (save time, money and provide better communica-

tion with LA officials)

» Where applicable, a service should be integrated with other services.

Five objectives of the i2010 e-Government Action Plan - Accelerating e-Government

in Europe for the Benefit of All should also be considered in developing cross-border

e-services:

1. Access for all

2. Increased efficiency

3. High-impact e-Government services

4. Putting key enablers in place

5. Increased participation in decision-making

Following paragraphs are describing the basic principles of e-services and bring

out the important enablers needed for the successful implementation.

2

9E-services for citizens and businesses

2.1 sTaGEs of onlInE sERVICE dEVElopMEnT

In order to measure the “availability of public services online” five-stage framework

has been defined and widely accepted by the European Union countries. This frame-

work provides basic guidelines of how to proceed with the development of various

services to the citizens and businesses. This kind of frameworks can be used also

while developing and measuring cross-border e-services.

» Stage 1 - Information: Information how to use public service is available on-line.

» Stage 2 - One-way Interaction: The public website offers the possibility to

download paper form for filling in and get specific service. Ordering a paper-

form via electronic channel is also considered as stage 2.

» Stage 3 - Two-way Interaction: The public website provides electronic forms to

fill in and to get certain public service. This implies that there must be additional

step for authentication of the person (physical or juridical) requesting the ser-

vices in order to reach stage 3.

» Stage 4 - Transaction (full electronic case handling): The public website offers

the possibility to get the public service fully via the website, including decision

and delivery. No other formal procedure is necessary for the applicant via “pa-

perwork”.

fIGURE 5: The different stages of e-services

Source: Preparing the 9th eGovernment Benchmark Measurement- method paper, European Commission (2010).

InformatIon

one-way InteractIon

two-way InteractIon

transactIon

personaLIzatIon

Stage 1

Stage 2

Stage 3

Stage 4

Stage 5

Stage 0


» Stage 5 – Personalization (pro-active and automated service delivery):

On this level fully integrated electronic procedures that help to improve data

consistency is provided. No other physical action is required on behalf of the

applicant. Online provision of the e-services is based on new models of front

and back-offices integration, the reuse of available data, the idea of pro-active

service delivery is embedded. For certain services this means that the applicant

receives the service automatically based on a previous registration of an event.

2.2 InTERopERabIlITy

Interoperability of information systems (IS) has become an important topic for all

countries in the world, as in the public sector it is defined as the ability of govern-

ment organizations to share and integrate information by using common standards

– shortly it is “talk to one another” without any technical problems that hinder the

smooth operation of government. To provide interoperability, it requires political,

legal, organizational, and technical activities.

Interoperability enables an online tracking system that permits citizens to check

on the status of online transactions. As with an identity management feature, such

a system implies that the citizen-facing system – the national website or portal – is

able to communicate with the system that government officials are using to process

the transaction.

The European Commission’s “Study on Analysis of the Needs for Cross-Border Services

and Assessment of the Organisational, Legal, Technical and Semantic Barriers” brings

out that for the successful implementation of the cross-border services, the inter-

operability is a key factor.

2.3 CITIZEn InClUsIon and E-paRTICIpaTIon

e-Participation is an area that is particularly relevant at the local level where indi-

viduals are most likely to come into contact with public agencies. It is important

to consider to what degree are governments providing supporting information, ac-

tively consulting with citizens through online channels, and involving them in deci-

sion-making processes. Each of these aspects of citizen-centric governance must be

defined in concrete, measurable terms, and corresponding data collected, in order

to monitor the relationship between online services and citizen empowerment.

Many governments have enhanced their national and ministerial websites to incor-

porate interactive tools to strengthen citizen e-participation. Citizens create a dif-

ferent relationship with their respective governments, characterized by enhanced

11E-services for citizens and businesses

effectiveness, as government are able to respond to the needs of citizens in a more

direct manner.

Web 2.0 tools like Facebook, Twitter, blogs, wikis, have empowered citizens to be-

come more active. They can make comments and suggestions to public institutions

through these sites, despite of where they are located and whether it is their own

LA, or LA across the border. The 24-7 reach of these tools provides a cost effective

mechanism for citizen alerts as well as for views on how the well government is

working.

2.4 pRIVaCy and sECURITy MaTTERs

Citizens are unlikely to use e-government services without a guarantee of privacy

and security. Governments also have a strong interest in maintaining citizens’ trust

(e.g. that information provided will not be misused). The difficulty of protecting indi-

vidual privacy can be an important barrier to e-government implementation. Ensur-

ing that e-government initiatives are in step with society’s expectations in this area

is a crucial means of building trust.

The challenge facing e-government coordinators and implementers is to respect

accepted privacy principles while allowing the benefits of the Internet and other

technologies to flow to citizens. This balance is of particular importance when con-

sidering seamless government services involving data sharing among agencies.

Government has a responsibility to provide leadership in developing a culture of pri-

vacy protection and security. ICT should provide this leadership through its roles in

the development of public policy, as owner and operator of systems and networks,

and as a user of such systems and networks. As a user of information systems and

networks, government shares a role with businesses, other organisations and indi-

viduals for ensuring secure use of the system and network.


3

dElIVERInG E-GoVERnMEnT In CRoss boRdER REGIons

3.1 boosTInG onlInE CRoss boRdER sERVICEs

according to the European Commission Analysis of the needs for cross-

border services and assessment of the organisational, legal, technical and

semantic barriers, in the context of the final conclusions on how to boost

online cross-border services the following categories shall be used:

» Economic: demonstrating the cost savings for all the stakeholders (Citizens,

Business, Administrations and Industry) in developing cross border services.

» Governance: Existing structure in terms of roles and responsibilities in coordina-

tion, overall sustainability and scalability aspects in use of cross-border services.

» Organisational: Cross-border model in setting requirements like handling of

different languages, etc.

» Legal: Cross-cutting directives and regulations, etc, setting the frame for the le-

gality of the policy, governance, technology, organisational aspects as well as

the legality of the service provision.

» Social and Communication: raising awareness within the administration and

towards users.

» Technology: technical architecture and functional requirements necessary for

cross border services.

13delivering e-government in cross border regions

3.2 kEy baRRIERs of CRoss boRdER sERVICEs

In order to further deploy and enhance cross-border services, the analysis of the

European Commission’s “Study on Analysis of the Needs for Cross-Border Services and

Assessment of the Organisational, Legal, Technical and Semantic Barriers” shows that

there are a number of recurring barriers representing similar challenges in e-ser-

vice provision:

1. Three major barriers are shared by all services, or indeed by any service requiring

bilateral interaction: eID, eSignatures and linguistic issues.

2. Key challenge for many services is the readiness of local infrastructures,

stakeholders and legislation.

3. All of the services above require stable governance mechanisms to ensure sus-

tainability.

3.3 sysTEMs foR aUTHEnTICaTIon and aUTHoRIZaTIon of CITIZEns

Question about what mechanism for authentication is used for cross-border com-

munication is widely connected to the relevant laws and regulations of the respect-

ed country. E-services, offered between cross-border LA-s should be analyzed, tak-

ing into account the required level for data security of the respective country and

principles of personal data protection.

Most of EU countries already have some form of citizens’ electronic authentication

systems. In some cases the system is also integrated with an electronic ID card data-

base and/or tied to the citizen’s mobile phone.

When talking about the cross-border LA-s between EU and non EU country, the level

of requirements differs, based on the information shared. Also software used for

digital signing is different.

The digital trust aspect between cross-border institutions is extremely important for

every electronic service. For this reason it is inevitable to include (electronic) infor-

mation security requirements in every e-governance project. The benefit that an e-

service or e-solution gives should be balanced with relevant security measures. The

importance of security and privacy is growing along the number of e-services is be-

ing implemented. This is also very important while implementing the cross-border

e-solutions that have equally accepted on both sides of the border.


Many online and corporate network services require strong user authentication. A

traditional method of authentication is a combination “Login + Password”. In order

to increase the information systems security level, other authentication technolo-

gies have been developed – tokens and smart-cards, digital certificates and keys,

biometric systems, etc.

The following three solutions describe the digital identity management, used in dif-

ferent EU and non-EU countries:

In Estonia, citizens are using their national ID-card or mobile phone to electronically

sign documents when digital signature is equally binding with physical signature. In

Russian Federation Crypto Pro solution is used for digital document exchange and

the software is used within the country. In Latvia there are still three different pos-

sibilities to give e-signature: virtual eSignature, eSignature on smart card and eSig-

nature on eID.

3.3.1 oVERVIEw of THE EsTonIan Id-CaRd TECHnoloGy

Estonian ID-card technology is based on the na-

tional ID-card, provided by the Police and Bor-

der Guard Board. ID-card provides both, physi-

cal and digital use of the card. Each person who

recieved the card, also gets 2 PIN codes where

first is (4 digits) for digital athentication and

second one (5 digits) for digital signing. Validity

confirmation service is provided by the Esto-

nian Certification Center. Most of government

services are available online (www.eesti.ee), through digital authentication.

In order to sign and view digitally signed documents, free software, called DigiDoc

can be downloaded (www.id.ee) by anyone who want to use it, despite of the geo-

graphical location. Digital signatures are free of charge for ordinary citizen and sig-

nature is binded with time stamp.

Digitally signed documents are stored in a „container“ where all signed files are listed

on the left side and signature together with time stamp is stored on the right. The

solution allows to add as many signatures as needed.


Digital signature is used since 2002 and by the year 2015 already 202 million digital

sigatures have been given (there are 1,3 million people in Estonia). ID-card is also a

physical identification and travelling document within the European Union (EU) and

mandatory identity document. Compulsory from the age of 15.

3.3.2 oVERVIEw of THE RUssIan CRypTo pRo TECHnoloGy

On the national level, the principles of ID-cards use (Universal Electronic Card - UEC)

have been described in the Federal Law of July 27, 2010 №210-FZ “On the organiza-

tion of state and municipal services”.


Universal Electronic Card (UEC) is a separate type of plastic card which allows the

user to perform legal actions, including receiving state, municipal and commercial

services in electronic form.

The UEC pilot was launched in 2012 in nine major regions of the country. Starting

from 2013 all citizens could apply for UEC. By February 2015 over 500 000 cards had

been given out (0.34% of RF citizens).

In September 2013 the Government of the

Russian Federation proposed the concept of

introducing a new identity card (Electronic

Passport) and the issuing process should start

from January 1, 2016.

At the moment, in Russia there is no single rec-

ommended solution for electronic signature –

different software is used: Crypto CSP (Crypto-

Pro), CryptoARM (Digital technology), KARMA (EOS), Blokhost-EDS (Gazinformservice),

Kriptoserver (Validata) and many others. In government institutions CryptoARM is

most often used - a program for encryption and signing of files of any format and size.

This program meets all the requirements of Russian legislation in the part of legally sig-

nificant status and is used to sign documents in the system of e-government services,

departmental workflow, various contracts and other documents.

Correctly installed and configured CryptoARM allows the user to sign, encrypt, verify

signature and decrypt any file types using its menu as well as using the File Manager

context menu.

To use it also across the border (cross-border signing solution), export license is re-

quired.


3.3.3 oVERVIEw of THE laTVIan Id-CaRd TECHnoloGy

Latvia started issuing electronic identity

cards (eID), provided by Office of Citizenship

and Migration Affairs in 2012, thus joining

the group of the EU Member States that have

already introduced their national eID. Apart

from being a physical identification and

travelling document within the European

Union (EU), eID ensures secure authentica-

tion for services online and the creation of a

legally binding digital signature. This is provided by the appropriate authentication

certificate, a means for creating and signing electronic documents, and 120 free-of

charge time stamps included in the eID card. Electronic signing service is provided

by SJSC “State Radio and Television Centre”. As ID-card is not compulsory in Latvia,

there are not many users of digital services, nor ID-card based signed documents.

Most of the e-services are used by the e-Signature cloud solution (eParaksts) where

authentication is made through the bank, or using 3-level mobile-based log-in

(mob. No + password + secret question). Most of the services are available when

logging into the bank.

Third digital signing solutions was created for entrepreneurs and public servants in

2013, as ID-card, not being compulsory document, was not in everybody´s pocket

and therefore no good solution for officials to sign documents by not using personal

banking for authentication.

3.3.4 oVERVIEw of THE TECHnoloGy „wElCoME wITHoUT passwoRd – wwp”

Several digital identity systems bind a user to a workstation or a particular PC where

all the components necessary for work with the authentication tools are installed.

Therefore, certain limits in use and inconvenience for users appear.

The technology «Welcome Without Password» (WWP) is newly worked out by the

company “e-Signature Without Borders” and is based on complex use of cryptogra-

phy and electronic signature technology. In order to use the technology, a person

needs a smartphone to be able to read a QR code.

WWP technology uses software-based security solutions (tokens and smart-cards

use hardware-based security solutions).


Every new client should pay a small fee for the certificate and its maintenance. User

identification for the first time is through the bank. The solution has been imple-

mented on the portal of the International system of protection against forgery and

counterfeit “Crypto Contra Counterfeit” (ССС) http://fbc24.com/. Detailed description

of the WWP technology is described in Russian on the following link in YouTube:

https://www.youtube.com/watch?v=tHFvfTWet7c

3.4 IMplEMEnTaTIon of dIGITal aRCHIVInG In CRoss boRdER aREas – PRACTICAL EXAMPLE FROM THE ESTLATRUS PROJECT

3.4.1 InTRodUCTIon of ElECTRonIC RECoRds and dIGITal aRCHIVInG

Digital records are not a new topic – they have been around since the personal com-

puters became prevalent at workplace in the 1990’s and provisions have been made

for the creation, exchange and archiving of electronic records in legislation by all

countries. In Estonia, the main legal acts that the use of electronic records in admin-

istrative process relies on, include the:

» Digital signature Act1

» Public Information Act2

» Archives Act3

» Administrative Procedure Act4

and several decrees (administrative and records management procedures, archiv-

ing procedures, etc.). Majority of existing regulations cover the active stages of the

life-cycle of electronic records while the archiving, storage and preservation aspects

have usually received less attention. Archiving in paper environment has carried the

notion that records are transferred to the custody of an archive once they are no

longer needed for current business. In digital environment the archiving may need

1 https://www.riigiteataja.ee/en/eli/ee/Riigikogu/act/508072014007/

2 https://www.riigiteataja.ee/en/eli/ee/Riigikogu/act/522122014002/

3 https://www.riigiteataja.ee/en/eli/530102013053/

4 https://www.riigiteataja.ee/en/eli/ee/Riigikogu/act/530102013037/consolide


to happen before the records have reached the inactive stage in their life-cycle but

the physical custody of digital files can be shared between an archive and the agen-

cy, without compromising the accessibility of records.

The practice of digital archiving is varying from agency to agency and often depends

on the availability of know-how, tools and skills. The type of electronic records (e.g.,

textual documents, databases, audio or video recordings, websites, etc.) also ap-

pears to determine the level of control that organisations have taken over their as-

sets – the more static data types (images, text) are often under better archival control

than the more dynamic object types.

Exercising planned control over life-cycle of electronic records facilitates their archiv-

ing towards the end of their life-cycle – adequate metadata, regard for authenticity

requirements, integrity control and continuous audit trail options are preconditions

for automating the archiving process. Using automated tools to actively manage the

electronic records throughout their life-cycle also enables further efficiency in the

administrative processes of managing records, responding to customers and creat-

ing a knowledge-base for improving user support.

This section of the Handbook will use an example from the EstLatRus project – au-

tomating the workflow of archival certificates – as an example of controlling the

life-cycle of electronic records that facilitates digital archiving and provides efficien-

cy gains for the owning organisation.

3.4.2 baCkGRoUnd of THE ManaGEMEnT of CRoss boRdER RECoRds

The EstLatRus project set out to facilitate cross-border e-services by developing the

enabling legislation, administrative procedures, ICT infrastructure and staff skills. Nar-

va, Kingissep and Slantsy local archives issue certificates to citizens on both sides of the

Estonian-Russian border but the current paper-based process is slow. In addition to

cross-border acceptance of digital signatures, an obstacle was also the difficulty with

managing efficiently and archiving of electronic records. The archival institutions are

issuing a broad range of certified document copies to a large number of applicants, a

third of which are cross-border. Efficiency effect of introducing cross-border elec-

tronic document exchange and archiving would, therefore, be substantial. The pro-

cess was analysed to determine ways to re-engineer the current business process for

efficiency and speed, and to enable digital archiving of created records.


3.4.3 pRoCEss analysIs

The process of issuing a certificate usually commences with the receipt of an appli-

cation via post as a paper document, application handed over in person and often

composed on location at the archives, sent by e-mail or fax, or a request made by

phone. The processing of an application can take anywhere between one day and

one month, depending on the nature of the application and information requested.

The average processing time in the archival institution is 1 week. The certified docu-

ment issued by the archive is final after it has been signed by the responsible official

and registered in the archives’ records registry. The documents are sent to the appli-

cant by mail, handed over the counter (the person is requested to produce an ID) or

sometimes also to a third party person who acts as a courier (a written authorisation

is requested).

The easy-wins in efficiency during this simple correspondence-based process

would be to use alternative tools or techniques, such as the following:

» Using standardised electronic application forms that will ensure that applicants

provide sufficient information for fulfilling the request and for archiving the re-

quest later as an electronic records. This can reduce the need for asking addi-

tional information either from the applicant or other agencies at a later stage of

processing the request.

» Scanning and OCRing the incoming paper applications to enable copying of text

from them both for searching the information in archives and when compiling

the archival certificate. When scanning happens in controlled environment, the

scanned versions of applications can be archived instead of the paper docu-

ments.

» Using or introducing electronic finding aids for archival collections since search

in a database is more efficient than browsing paper-based finding aids. Dedi-

cated archives management software solutions are available on the market.

Electronic records management systems (ERMS) can also be configured to act

as archival finding aids.

» Defining a shared metadata set for describing the document types that are re-

ceived and issued by the organisation, as well as shared vocabularies, keywords

and thesauri facilitate the search and retrieval process in both electronic records

management as well as archives management systems.

» Using organisation’s ERMS to assign tasks (e.g. finding the relevant records and

compiling the archive’s certificate) to members of staff and to track the progress

of work. This helps avoiding the situation where some applications are pro-


cessed for a long time or „forgotten“ because an employee’s absence, illness or

other reasons.

» Digitising the archival records that were found and are used as the basis for ar-

chival certificates. The scanned images can be stored in the organisation’s ERMS

or archival database for checking and future use, for example when a repeated

request or application for additional certificates is received.

» Using ready-made document templates for archives’ certificates that are linked

with the registration system (e.g., ERMS) for incoming applications. Through link-

ing it is possible to automatically fill some fields in the document template and

thus speed up the certificate-creation in the archives.

» Using an electronic document or records management system (ERMS) for regis-

tration, document approval and digitally signing it within the archives to speed

up the review and approval process. For example:

» Every time a new application is registered, a query should be run in the ERMS

to check whether same application already exists or has been dealt with pre-

viously so as to speed up the answering process.

» Possibility for searching for received application in electronic database by

various keywords (person’s name, geographical area, date range, document

type, etc.).

» Using pre-defined workflows in ERMS for document approval and signing

process within the organisation to speed up the review and approval process,

and to allow tracking of the process.

» The resulting digital archive of current, digitally signed records complete with

all necessary metadata, can easily be archived electronically either locally or

handed over to an archives service provider.

» Using electronic signatures instead of handwritten signatures and organisations’

stamps will save time, facilitate electronic document exchange and provide for

archiving the documents digitally in the future.

» Sending the finished archival certificates to applicants via electronic channels in

order to speed up the forwarding process and to save on postage costs. When

files are large or require secure channels of communication file-sharing envi-

ronments similar to Dropbox can be used that have controlled access and user

authentication mechanisms. Export and import with such tools should be inte-

grated into the ERMS solutions.


» To avoid difficulties with using digitally signed documents, institutions should

agree on file formats and types of (e.g. very old or very new file formats or their

versions; file formats created with software that does not exist at one partner

involved in the exchange).

Implementing some or all of these features will automate the workflow associated

with handling the requests and issuing certificates in response to them. It will pro-

vide the participating organisations in significant gains in speed of responding to

customer requests, avoiding duplication of effort and build a digital collection over

time that can be searched with automated tools and archived as a whole.

3.4.4 lEssons lEaRnEd and ConClUsIons

» Digital archiving starts by taking the electronic records under active manage-

ment control at as early a stage as possible, preferably at their creation phase.

» Digitising paper-based documents will speed up their subsequent processing

and will avoid having to create a hybrid collection of both paper and digital re-

cords that is more difficult to archive and use.

» Digital archive relies not only on records but also on their metadata – for search

and retrieval, but also for verifying the authenticity of records. Standards exist for

records management metadata and / or archival description in all countries and

these should be used.

» Digital signatures are a primary means for creating, exchanging, archiving and

storing authentic electronic records.

» EDMS provide most of the desired features for taking the life-cycle of electronic

records under control and also for automating the archiving of records.

» Mutual agreements with key partners in correspondence and reliance on exist-

ing standards makes the task of archiving considerably easier.

» Digital archiving does not require significant resources – it can be started us-

ing standard office software and tools used for processing documents. The key

component is the analysis of records processes and life-cycle with the archiving

requirements in mind. The records creation and management processes can be

reviewed and re-designed to ensure the creation of a complete digital records’

archive. The archive can be maintained in the ERMS until its retention period is

over, periodically transferred to a dedicated digital archive management soft-

ware system, or transferred to an archives service provider / public archive. In

23Implementation of E-Government in Cross-border Regions

the latter case, the regulations and standards established by the archive must

be followed.

» Digital archiving will never be fully regulated by legal acts - legislation and regu-

lations only provide the necessary enabling foundation for the use and archiv-

ing of electronic records. But the level of granularity required for implementing

these processes in practice will always require initiative, planning and manage-

ment from organisation itself. Useful guidance and best practice exists for the

implementation phase (see Appendix 1 – Useful Resources).


appEndIx 1: UsEfUl REsoURCEs

Archiving

» Estonian National Archives http://www.arhiiv.ee/en

Digital signature

» Estonian ID-card and digital identity: http://id.ee/index.php?id=30500

Electronic Records Management Systems

» https://www.mkm.ee/en/objectives-activities/information-society/records-

management-information-governance

» http://www.nationalarchives.gov.uk/documents/information-management/

managing-electronic-records-without-an-erms-publication-edition.pdf

Metadata

» http://community.aiim.org/browse/blogs/blogviewer/?BlogKey=da202182-57

5a-4ce5-87f5-0c3c1ddf3802&tab=recentcommunityblogsdashboard

Scanning paper documents

» http://www.naa.gov.au/records-management/digital-transition-policy/scan-

ning-incoming-paper.aspx

» http://www.archives.gov/frc/scanning/why-scan.html

» http://www.aiim.org/Research-and-Publications/Research/AIIM-White-Papers/

Archived-Content

Other resources

» Digitizing Public Services in Europe: Putting ambition into action - 9th Bench-

mark Measurement, European Commission (2010)

» Global Information Technology Report 2012, World Economic Forum (2012)

» Study on Analysis of the Needs for Cross-Border Services and Assessment of the

Organisational, Legal, Technical and Semantic Barriers, European Commission

(2011)

» United Nations e-Government Survey 2012 – e-Government for the People, Unit-

ed Nations New York (2012)

» United Nations e-Government Survey 2014 – e-Government for the Future We

Want (2014)

Estonia – Latvia – Russia Cross Border Cooperation Programme within the European

Neighbourhood and Partnership Instrument 2007-2013 financially supports

joint cross border development activities for the improvement of the region’s

competitiveness by utilising its potential and beneficial location on the crossroads

between the EU and Russian Federation.

The Programme web-site is www.estlatrus.eu.

e-Governance Academy Foundation

Tõnismägi 2

10122 Tallinn

Estonia

+ 372 641 1313

[email protected]

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